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Foreign Relations of the United States
1945-1950
Emergence of the Intelligence EstablishmentDepartment of State
Washington, DC
Psychological and Political Warfare
250. Memorandum of Discussion at the 2d Meeting of the National Security Council
Washington, November 14, 1947.
//Source: Truman Library, Papers of Harry S. Truman, President's Secretary's Files, Subject File. Top Secret.
[Here follows discussion of agenda items 1-4, control of exports to the USSR and Eastern Europe, U.S. Maritime Commission, U.S. position with respect to Italy, and base rights in Greenland, Iceland, and the Azores.]
5. Psychological Warfare (SANACC 304/11)/1/
Secretary Marshall requested that the title of this paper be changed to eliminate the word "warfare."/2/
/1/Document 249.
/2/Hillenkoetter told his staff meeting on November 18 "Mr. Marshall does not like term 'PW' and does not seem to favor the idea of psychological warfare at this time." (Minutes of Staff Meeting, November 18; Records of the Central Intelligence Agency, Job 80-01731R, Box 31, Folder 3)
[1 paragraph (2-1/2 lines of source text) not declassified]
Mr. Lovett and Admiral Hillenkoetter explained that the intent was only to ensure that all psychological activities were coordinated with our foreign policy and our information program. The Secretary of State was therefore given the responsibility for general coordination of all such activities.
Secretary Royall, speaking also for Secretary Forrestal and Secretary Symington, stated that the Military Establishment did not believe that it should have a part in those activities. He therefore suggested deletion of the provisions for an advisory group and a director.
The National Security Council:
Referred SANACC 304/11 to the National Security Council Staff for revision in the light of the comments at the meeting.
[Here follows discussion of agenda item 6, review of the world situation as it relates to the security of the United States.]
251. Memorandum From the Deputy Director of Central Intelligence (Wright) to the Chief of the Interagency Coordinating and Planning Staff, Central Intelligence Agency (Childs)
Washington, December 2, 1947.
//Source: Central Intelligence Agency Historical Files, HS/HS-74, Item 1. Top Secret.
SUBJECT
NSC Notes on Psychological OperationsReference is made to your attached notes on Psychological Operations./1/ That paragraph relating to the placing of a special panel of Army, Navy, and Air Force planners within CIA (or elsewhere), to give special attention to psychological operations to insure very close cooperation abroad--is very alarming.
/1/Not found. The memorandum appears to refer to discussions at the NSC staff level about the prospective NSC directive on psychological warfare.
All concerned must appreciate that this Agency is and must be the sole agency to conduct organized foreign clandestine operations. To sabotage this principle can only lead to chaos in this type of operation.
Whatever Agency is chosen to indicate the type of Black operations to be conducted, or the material and/or propaganda to be disseminated--the Central Intelligence Agency must alone be the Agency to determine how the material is disseminated. The pattern of our foreign operations will not permit supervision of these activities by other agencies if it is to be maintained as an efficient and secure operation and the conduct of Black psychological operations must fit into the over-all operational pattern.
It is possible that the actual situation is not known or appreciated by all members of the NSC staff. If you feel this is so I would be very happy to discuss it with them.
EKW
Brigadier General, USA252. Memorandum From the Executive Secretary (Souers) to the Members of the National Security Council
NSC 4
Washington, December 9, 1947.
//Source: National Archives and Records Administration, RG 273, Records of the National Security Council, NSC Minutes, 4th Meeting. Confidential. Copies sent to the President, the Secretaries of State, Defense, the Army, the Navy, and the Air Force, and the Chairman of the National Security Resources Board. For an early version of this document, see the memorandum from "REN" to Souers, November 25, and the two undated attachments (ibid.) in the Supplement.
COORDINATION OF FOREIGN INFORMATION MEASURES
REFERENCES
a. SANACC 304/11
b. NSC Action No. 11/1//1/NSC Action No. 11, taken at the NSC meeting on November 14, referred SANACC 304/11 to the NSC Staff for revision based on the comments at the meeting. (National Archives and Records Administration, RG 273, Records of the National Security Council, Record of Actions, Box 55)
At its second meeting the National Security Council referred SANACC 304/11 to the National Security Council Staff for revision in the light of the comments at the meeting. The enclosed report has been prepared pursuant to that directive, after consultation with representatives of the Departments of State, the Army, the Navy and the Air Force, and of the Central Intelligence Agency.
It is recommended that the National Security Council approve the enclosed report and authorize its submission to the President, with the recommendation that he approve the "Conclusions" contained therein and direct that they be implemented by all appropriate executive departments and agencies of the U.S. Government under the coordination of the Secretary of State.
Sidney W. Souers/2/
/2/Printed from a copy that bears this typed signature.
Enclosure/3/
/3/Confidential. The word "Draft" at the top of the first page has been crossed through. The typewritten date December 9 was changed by hand to December 17.
National Security Council Memorandum
NSC 4
Washington, December 17, 1947.
REPORT BY THE NATIONAL SECURITY COUNCIL ON COORDINATION OF FOREIGN INFORMATION MEASURES
The Problem
1. To determine what steps are required to strengthen and coordinate all foreign information measures of the U.S. Government in furtherance of the attainment of US national objectives.
Analysis
2. The USSR is conducting an intensive propaganda campaign directed primarily against the US and is employing coordinated psychological, political and economic measures designed to undermine non-Communist elements in all countries. The ultimate objective of this campaign is not merely to undermine the prestige of the US and the effectiveness of its national policy but to weaken and divide world opinion to a point where effective opposition to Soviet designs is no longer attainable by political, economic or military means. In conducting this campaign, the USSR is utilizing all measures available to it through satellite regimes, Communist parties, and organizations susceptible to Communist influence.
3. The US is not now employing strong, coordinated information measures to counter this propaganda campaign or to further the attainment of its national objectives. The extension of economic aid to certain foreign countries, particularly in Europe, is one of the principal means by which the US has undertaken to defend its vital interests. The nature and intent of this aid and other US contributions to world peace is unknown to or misunderstood by large segments of the world's population. Inadequate employment of information measures is impairing the effectiveness of these undertakings.
4. None of the existing departments or agencies of the US Government is now charged with responsibility for coordinating foreign information measures in furtherance of the attainment of US national objectives. Upon the Department of State devolves the principal responsibility, under the President, for the formulation and execution of American foreign policy and the conduct of American foreign relations.
5. Facilities now existing in the Departments of State, the Army, the Navy and the Air Force in the field of foreign information or which can be utilized in this field are listed in the Appendix/4/ hereto.
/4/The appendix, not found, lists agencies and offices of the Departments of State, the Army, the Navy, and the Air Force involved in the dissemination of information overseas.
Conclusions
6. The present world situation requires the immediate strengthening and coordination of all foreign information measures of the US Government designed to influence attitudes in foreign countries in a direction favorable to the attainment of its objectives and to counteract effects of anti-US propaganda.
7. It is considered that the initial steps to implement paragraph 6 above should be designed to provide closer coordination of policies, more effective integration of existing facilities, and intensification of foreign information measures.
8. a. The Secretary of State should be charged with formulating policies for and coordinating the implementation of all information meas-ures designed to influence attitudes in foreign countries in a direction favorable to the attainment of US objectives and to counteract effects of anti-US propaganda. It is assumed that these functions will be exercised by the Assistant Secretary of State for Public Affairs, hereinafter referred to as the Assistant Secretary. The Assistant Secretary should consult with an informal group composed of representatives of other appropriate departments and agencies.
b. Appropriate departments and agencies should be directed to insure the most effective coordination and utilization of their appropriate facilities for the implementation of approved foreign information policies.
c. The Assistant Secretary should be assisted by a staff including qualified full-time personnel detailed from each appropriate department or agency. This staff should assist the Assistant Secretary in implementing the policies and plans established by the Secretary of State by:
(1) Obtaining the most effective utilization and coordination of all federal foreign information facilities;
(2) Initiating and developing for the approval of the Assistant Secretary specific plans and programs designed to influence foreign opinion in a direction favorable to US interests and to counteract effects of anti-US propaganda.
9. As a matter of priority, the Assistant Secretary should coordinate the determination of the requirement for funds necessary to insure performance of the functions assigned in paragraph 8 above.
10. The Assistant Secretary should be furnished by the Central Intelligence Agency with appropriate coordinated foreign intelligence.
11. The Assistant Secretary should be furnished by the appropriate departments with classified information necessary for the fulfillment of his responsibilities.
12. In carrying out the functions assigned in paragraph 8 above, the Assistant Secretary should maintain the closest possible liaison with the State-Army-Navy-Air Force Coordinating Committee.
253. Memorandum From the Executive Secretary (Souers) to the Members of the National Security Council
NSC 4-A
Washington, December 9, 1947.
//Source: National Archives and Records Administration, RG 273, Records of the National Security Council, NSC Minutes, 4th Meeting. Top Secret.
PSYCHOLOGICAL OPERATIONS
REFERENCE
SANACC 304/11/1//1/Document 249.
1. The National Security Council at its second meeting referred SANACC 304/11 to the NSC Staff for revision in the light of the comments at the meeting.
2. SANACC 304/11 appears to be designed to accomplish the following two related but separate purposes:
a. To initiate steps looking toward the conduct of covert psychological operations designed to counteract Soviet and Soviet-inspired activities.
b. To ensure that all overt foreign information activities are effectively coordinated.
3. Therefore, in the interest of security and clarity, the Staff of the National Security Council has prepared separate reports to the National Security Council designed to achieve each of the above purposes. This report deals with the purpose described in 1-a, while NSC 4/2/ deals with the purpose stated in 1-b.
/2/Document 252.
4. The enclosed draft directive to the Director of Central Intelligence is believed to be an appropriate and adequate action by the Council with reference to covert psychological operations abroad. This directive contains the following desirable provisions:
a. It specifies the reason and the authority for the Council's action;
b. It grants sufficient authority to the Central Intelligence Agency; while
c. At the same time it ensures that Central Intelligence Agency will conduct such operations in a manner consistent with U.S. foreign policy, overt foreign information activities, and diplomatic and military operations and intentions abroad.
5. The names of appropriate departments and agencies to be represented on the panel referred to in subparagraph 3-a, will be recommended by the NSC Staff in a separate memorandum./3/
/3/Document 255.
6. It is therefore recommended that the National Security Council approve and issue the enclosed directive to the Director of Central Intelligence.
Sidney W. Souers/4/
/4/Printed from a copy that bears this typed signature.
Enclosure/5/
Draft Directive to Director of Central Intelligence Hillenkoetter
Washington, undated.
/5/Top Secret. Paragraph 3 of this draft was dropped in the final version and replaced by a paragraph that made the Director of Central Intelligence responsible for ensuring that psychological warfare operations were consistent with U.S. foreign policy. See the attachment to Document 257.
1. The National Security Council, taking cognizance of the vicious psychological efforts of the USSR, its satellite countries and Communist groups to discredit and defeat the aims and activities of the United States and other western powers, has determined that, in the interests of world peace and U.S. national security, the foreign information activities of the U.S. Government must be supplemented by covert psychological operations.
2. The similarity of operational methods involved in covert psychological and intelligence activities and the need to ensure their secrecy and obviate costly duplication renders the Central Intelligence Agency the logical agency to conduct such operations. Hence, under authority of Section 102 (d) (5) of the National Security Act of 1947, the National Security Council directs the Director of Central Intelligence to initiate and conduct, within the limit of available funds, covert psychological operations designed to counteract Soviet and Soviet-inspired activities which constitute a threat to world peace and security or are designed to discredit and defeat the United States in its endeavors to promote world peace and security.
3. In order to insure that such psychological operations are in a manner consistent with U.S. foreign policy, overt foreign information activities, and diplomatic and military operations and intentions abroad, the Director of Central Intelligence is charged with:
a. Obtaining approval of all policy directives and major plans for such operations by a panel to be designated by the National Security Council.
b. Coordination of operations with the senior U.S. diplomatic and military representatives in each area which will be directly affected by such operations.
4. Nothing contained herein shall be construed to require the Central Intelligence Agency to disclose operational details concerning its secret techniques, sources or contacts.
254. Memorandum From Director of Central Intelligence Hillenkoetter to the Executive Secretary of the National Security Council (Souers)
Washington, December 15, 1947.
//Source: National Archives and Records Administration, RG 273, Records of the National Security Council, NSC Minutes, 4th Meeting. Top Secret.
1. Reference is made to NSC 4-A (Report to the National Security Council by The Executive Secretary on Psychological Operations) as distributed under date of 9 December 1947,/1/ with particular reference to the proposed Directive To The Director of Central Intelligence.
/1/Document 253.
2. In the event the subject project is implemented, it is requested that consideration be given to rewording paragraph 3.b., of the proposed Directive to The DCI as follows:
"b. The senior U.S. diplomatic representative in each area, and the military commander in each occupied area, will be kept informed of psychological operations being conducted in areas under their jurisdiction."
3. We feel the suggested rewording will satisfy the intent of the original wording and will--
a. Provide greater security to our organized covert operations, and
b. Will follow the existing interdepartmental agreement that the senior U.S. representative in each foreign area is responsible for the coordination of all overt intelligence activities.
RH Hillenkoetter
Rear Admiral, USN255. Memorandum From the Executive Secretary (Souers) to the National Security Council
Washington, December 16, 1947.
//Source: National Archives and Records Administration, RG 273, Records of the National Security Council, NSC Minutes, 4th Meeting. Top Secret.
SUBJECT
Representation on the panel recommended in NSC 4-A/1//1/Document 253.
It is recommended that the panel referred to in paragraph 3-a of the draft directive in NSC 4-A consist of one representative from each of the following Departments:
Department of State
Department of the Army
Department of the Navy
Department of the Air ForceAt the suggestion of General Gruenther, it is also recommended that the Joint Staff, Joint Chiefs of Staff, be invited to designate a representative who shall sit with the above panel as an observer.
Sidney W. Souers
256. Department of State Briefing Memorandum
Washington, December 17, 1947.
//Source: National Archives and Records Administration, RG 59, Records of the Department of State, Records of the Executive Secretariat, NSC Files: Lot 63 D 351, NSC 4. Top Secret. The date is handwritten on the source text. The memorandum has neither an addressee nor a sender, but presumably it was intended for Under Secretary Lovett, who was Acting Secretary at the time. The document is a briefing paper for the NSC meeting held December 17.
COORDINATION OF FOREIGN INFORMATION MEASURES(NSC 4) PSYCHOLOGICAL OPERATIONS (NSC 4-A)
I. Discussion
The NSC Staff has revised SANACC 304/11 (the psychological warfare paper) and prepared two separate reports, one which plans the coordination of foreign information measures in overt operations (NSC 4), and the other initiating steps working toward covert psychological operations (NSC 4-A).
NSC 4 (Tab A),/1/ which has the approval of the Department as indicated in Mr. Sargeant's memorandum (Tab B) proposes:
/1/Document 252.
(a) The Secretary of State should be charged with formulating and coordinating the implementation of all information measures designed to influence attitudes in foreign countries in a direction favorable to the attainment of US objectives and to counteract effects of anti-US propaganda. It is assumed that these functions will be exercised by the Assist-ant Secretary of State for Public Affairs, who should consult with an informal group composed of representatives of other appropriate departments and agencies.
(b) Appropriate departments and agencies should be instructed to insure the most effective coordination and utilization of their appropriate facilities, and
(c) The Assistant Secretary should be assisted by a staff including qualified full-time personnel detailed from each appropriate agency.
NSC 4-A (Tab C)/2/ entitled Psychological Operations provides that covert psychological operations shall be conducted by the CIA and a draft directive to the Director of CIA is enclosed with the report. This directive authorizes CIA to initiate and conduct covert psychological operations designed to counteract Soviet-inspired activity provided that the approval of all policy directives and major plans are obtained from a panel to be designated by the Council. This panel will probably consist of representatives of State, Army, Navy, Air and perhaps the JCS.
/2/Document 253.
In the memorandum, (Tab D),/3/ Mr. Kennan indicates that whereas it is desirable to establish the authority for the proposed operations, the Council should be frankly informed that before giving our consent to any such activities we would wish to consider most carefully the need therefor. Furthermore, we would want to examine the situation in all its aspects in case of any suggested operation, and to judge each case strictly on its merits.
/3/Not found.
II. Recommendations
It is recommended:
(a) That you approve NSC 4 Coordination of Foreign Information Measures, and
(b) Approve NSC 4-A Psychological Operations with the understanding that we are only approving the establishment of the authority for the proposed operations.
(c) That you indicate to the Council our views on such activities as indicated above.
Tab B/4/
/4/Secret.
Memorandum From the Deputy to the Assistant Secretary of State for Public Affairs (Sargeant) to Acting Secretary of State Lovett
Washington, December 15, 1947.
SUBJECT
Report to National Security Council on Coordination of Foreign Information Measures1. The attached report/5/ is a revision of SANACC 304/11 drafted by the NSC staff in the light of comment at the second meeting of the National Security Council.
/5/Not attached. Reference is to a draft of NSC 4, possibly Document 252.
2. It is recommended that the report be approved by the Department.
3. Significant changes in the original SANACC paper have been made as follows:
(a) All reference to "psychological measures" has been eliminated;
(b) Paragraph 6 provides for "the immediate strengthening and coordination of all foreign information measures of the U.S. Government . . . ."
(c) Paragraph 8a assumes that the Assistant Secretary of State for Public Affairs, acting for the Secretary of State, will "consult with" rather than "be advised by" an informal group composed of representatives of other appropriate departments and agencies in formulating information policies and coordinating the implementation of all information measures.
(d) "Other appropriate departments and agencies" are not specified in the report, but it is understood that they shall include, initially, the Departments of Army, Navy, Air Force, and the Central Intelligence Agency.
4. The report contains no recommendation regarding implementation of Paragraph 3b, which provides that "appropriate departments and agencies should be directed to insure the most effective coordination and utilization of their facilities . . . ." Presumably, such a directive would be issued by the Committee of Two. This point should be clarified, however, as the Secretary of State would not be in a position to carry out his responsibilities without a clear directive to the participating departments and agencies./6/
/6/In the margin next to this paragraph is the following handwritten note: "Secretary of State would have authority to issue these directives under President's approval of the paper. S/S-H.W. Moseley."
5. I understand Mr. Kennan has briefed you on another aspect of this problem which will be discussed at the National Security Council meeting. If possible, I should like to discuss briefly with you the relationship between these two aspects.
HHS
257. Memorandum From the Executive Secretary of the National Security Council (Souers) to Director of Central Intelligence Hillenkoetter
Washington, December 17, 1947.
//Source: National Archives and Records Administration, RG 273, Records of the National Security Council, NSC Minutes, 4th Meeting. Top Secret. Central Intelligence Agency records contain a typescript copy that apparently was made from a signed copy; it is identical to the source text. (Central Intelligence Agency Historical Files, HS/CSG-773, Job 83-00036, Box 5, Folder 8) Also reproduced in CIA Cold War Records: The CIA under Harry Truman, pp. 173-175.
SUBJECT
Psychological OperationsREFERENCE
NSC 4-AAt its fourth meeting the National Security Council amended and approved the draft directive to the Director of Central Intelligence contained in NSC 4-A./1/
/1/The NSC minutes for the Council's 4th meeting on December 17 refer only to NSC 4, noting simply that it was adopted without change and subsequently submitted to the President for approval. (National Archives and Records Administration, RG 273, Records of the National Security Council, NSC Minutes, 4th Meeting) There is no mention of NSC 4-A in the minutes. The amendment referred to in the undated directive to Hillenkoetter involved paragraph 3, where the proposal for an advisory panel was eliminated. See the enclosure to Document 253. Souers submitted NSC 4 to the President for approval under a memorandum of December 17. Truman approved NSC 4 on December 18. (National Archives and Records Administration, RG 273, Records of the National Security Council, NSC Minutes, 4th Meeting) The file contains no mention of the President's approval of NSC 4-A.
This directive, as approved by the National Security Council, is transmitted herewith for appropriate action.
Sidney W. Souers/2/
/2/Printed from a copy that bears this typed signature.
Attachment/3/
/3/Top Secret.
National Security Council Directive to Director of Central Intelligence Hillenkoetter
1. The National Security Council, taking cognizance of the vicious psychological efforts of the USSR, its satellite countries and Communist groups to discredit and defeat the aims and activities of the United States and other Western powers, has determined that, in the interests of world peace and U.S. national security, the foreign information activities of the U.S. Government must be supplemented by covert psychological operations.
2. The similarity of operational methods involved in covert psychological and intelligence activities and the need to ensure their secrecy and obviate costly duplication renders the Central Intelligence Agency the logical agency to conduct such operations. Hence, under authority of Section 102(d)(5) of the National Security Act of 1947, the National Security Council directs the Director of Central Intelligence to initiate and conduct, within the limit of available funds, covert psychological operations designed to counteract Soviet and Soviet-inspired activities which constitute a threat to world peace and security or are designed to discredit and defeat the United States in its endeavors to promote world peace and security.
3. The Director of Central Intelligence is charged with ensuring that such psychological operations are consistent with U.S. foreign policy and overt foreign information activities, and that appropriate agencies of the U.S. Government, both at home and abroad (including diplomatic and military representatives in each area), are kept informed of such operations which will directly affect them.
4. Nothing contained herein shall be construed to require the Central Intelligence Agency to disclose operational details concerning its secret techniques, sources or contacts.
258. Memorandum From Director of Central Intelligence Hillenkoetter to the Assistant Director for Special Operations (Galloway)
Washington, December 22, 1947.
//Source: Central Intelligence Agency Historical Files, HS/CSG-917, Job 83-00036, Box 6, Folder 11. Top Secret.
SUBJECT
Foreign Information Measures1. This Agency has been directed by the National Security Council to supplement the foreign information activities of the U.S. Government by covert psychological operations. Further, we have been charged with insuring that such operations are consistent with U.S. foreign policy and overt information activities, and that appropriate agencies of the U.S. Government, both at home and abroad, are kept informed of such operations which will directly affect them.
2. It has been determined that the Office of Special Operations will be the operational unit for the conduct of covert psychological operations in accordance with the directive of the National Security Council to this Agency.
3. Attached hereto, for your information and guidance, is Copy No. 18 of NSC 4./1/ This document will be utilized as the basic policy directive for the operations considered herewith.
/1/Document 252.
4. It is desired that you take immediate steps to prepare a plan for the conduct of covert psychological operations, utilizing wherever practicable existing facilities of your office and the other offices of this Agency. Your recommendations reference the following specific matters will be submitted at the earliest practicable date:
a. Proposed Organizational Chart for a Foreign Information Branch, Office of Special Operations.
b. Proposed Table of Organization, Staff and Field, for the conduct of covert psychological measures.
c. Proposed plan of liaison with appropriate departments and agencies of the Government.
d. Estimate of funds required for fiscal years 1948 and 1949.
R. H. Hillenkoetter/2/
Rear Admiral, USN/2/Printed from a copy that bears this typed signature.
259. Memorandum From the Director of the Policy Planning Staff (Kennan) to the Under Secretary of State (Lovett)
Washington, February 17, 1948.
//Source: National Archives and Records Administration, RG 59, Records of the Department of State, Decimal File 1945-49, 101.6/2-1748. Top Secret.
In connection with the decision of the National Security Council regarding psychological warfare operation, I believe it would be advisable if you were to tell Mr. Wisner, in the absence of Mr. Saltzman, that the work of the SANACC Subcommittee on Special Studies and Evaluation/1/ should be promptly brought to a conclusion and the subcommittee dissolved. Because of security considerations, Mr. Wisner should not be informed of the reasons lying behind your instructions, but he can be told that this is in response to higher level decision.
/1/The designation for the SANACC subcommittee that dealt with psychological warfare.
George F. Kennan
Continue with Document 260
